An Approach in Strengthening Disaster Risk Reduction and

Republic Act 10121: An Approach in Strengthening Disaster
Risk Reduction and Management in the Philippines 1
Princess Alma B. Ani, Carl Rookie O. Daquio, and Albert P. Aquino2
Introduction
The Philippines as an archipelago is highly exposed to natural hazards because of its geographic
and climatological location. It is situated along the Pacific Typhoon Belt and is within the Pacific
Ring of Fire. As such, the country is susceptible to multiple recurrence of natural hazards such as
typhoons and storm surges, earthquakes, floods and landslides. In fact, the country is ranked
third among 173 countries in terms of disaster risk (World Risk Report, 2012 as cited in Disaster
Management Practices in the Philippines: An Assessment, 2013). This natural situation of the
country is compounded by the uncontrolled human settlement in hazard-prone and marginal
areas, high poverty rate, failure to implement building codes and construction standards, and
degradation of forests and coastal resources, among others (UNICEF Philippines, 2014).
For the period 1970 to 2009, the country’s annual average direct cost of damages related to
disasters ranged from Php 5 billion to Php 15 billion (US$100 million to US$300 million). This
is equivalent to more than 0.5% of the national gross domestic product (GDP) which did not
even include other indirect damages and secondary impacts due to disasters (Commission on
Audit, 2014).
The brunt of these natural hazards, especially flooding occurrences, is felt the most by 27.6
million Filipinos who are among the poorest and marginalized. They are often trapped in a
seemingly never ending cycle of disaster, displacement and rebuilding (UNICEF Philippines,
2014). However, while natural disasters are detrimental to properties and livelihood activities
that caused grave economic impacts especially to the poor, their occurrence are among the major
causes of casualties in the country. Annually, it was estimated that natural calamities claim about
1,002 lives.
For a country like the Philippines, a proactive disaster risk management approach is
imperative with the end view of increasing people’s resilience and decreasing their
vulnerabilities to natural disasters.
1
A short policy paper submitted to the Food and Fertilizer Technology Center (FFTC) for the project titled “Asia-Pacific Information Platform in
Agricultural Policy”. Short policy papers, as corollary outputs of the project, describe pertinent Philippine laws and regulations on agriculture,
aquatic and natural resources.
2
Senior Science Research Specialist, Former Science Research Analyst, and Chief Science Research Specialist, respectively, of the SocioEconomics Research Division-Philippine Council for Agriculture, Aquatic and Natural Resources Research and Development (SERD-PCAARRD) of
the Department of Science and Technology (DOST), Los Baños, Laguna, the Philippines.
1
Approach to disaster risk management
Since 2009, the Philippine Government has put in place a robust national legal and policy
framework that aims to strengthen the country’s disaster risk reduction (DRR) system. Hence,
Republic Act No. 10121 otherwise known as the “The Philippine Disaster Risk Reduction and
Management (PDRRM) Act of 2010” was passed into law in May 2010. It acknowledges among
other things, the need to adopt a disaster risk reduction and management (DRRM) approach that
is holistic, comprehensive, integrated, and proactive in lessening the socio-economic and
environmental impacts of disasters including climate change. It aims to promote the involvement
and participation of all sectors and all stakeholders concerned, at all levels, especially the local
community (Section 2, RA No. 10121). This law replaced Presidential Decree No. 1566 of 1978
“Strengthening the Philippine Disaster Control Capability and Establishing the National Program
of Community Disaster Prevention”, which no longer reflect the current social realities and
circumstances and effects on development and growth of disasters and climate change (National
Disaster Risk Reduction and Management Council, 2014).
RA 10121 provides a strong legal and institutional basis for DRRM in the country and
provided basis for the development of policies and plans, implementation of actions and
measures pertaining to all aspects of DRRM, including good governance, risk assessment and
early warning, knowledge building and awareness raising, reducing underlying risk factor, and
preparedness for effective response and early recovery (Section 4, RA No. 10121).
With the extent of natural disasters that recently occurred, the PDRRM Act shifted its focus
from disaster response and recovery towards disaster risk reduction, preparedness and mitigation.
As an integral part of development programs, the Act provided for more emphasis on
strengthening the communities’ and people’s capacity to anticipate, cope with and recover from
disasters. It adopts and adheres to principles and strategies consistent with the international
standards set by the Hyogo Framework for Action (HFA) which is a comprehensive, actionoriented response to international concern about the growing impacts of disasters on individuals,
communities, and national development (DRR Knowledge Centre, 2014).
Under the Philippine Disaster Risk Reduction and Management (PDRRM) Act of 2010, the
following are its declaration of policy:
 Strengthening institutional capacity of DRRM (includes LGUs, communities, vulnerable and
marginalized groups);
 Building the resilience of local communities to disasters;
 Adherence to universal norms, principles and standards/incorporation of internationally
accepted principles of DRM;
 Participation of all sectors and all stakeholders at all level/engage participation of civil
society organizations;
 Adoption and implementation of a comprehensive DRR program incorporated in the
development plan;
 Mainstreaming DRR and climate change in the development processes and peace
process/conflict resolution approach;
 Institutionalizing the policies, structures, coordination mechanisms and programs; and
2

Provide maximum care, assistance and services to individuals and families affected by
disaster, implement emergency rehabilitation projects to lessen the impact of disaster, and
facilitate resumption of normal social and economic activities.
National organizations working on DRRM
The PDRRM Act transforms the National Disaster Coordinating Council (NDCC) into the
National Disaster Risk Reduction and Management Council (NDRRMC) (Section 5, RA No.
10121). The National Council, being empowered with policy-making, coordination, integration,
supervision, monitoring and evaluation functions, oversees the Philippine disaster management
system composed of large numbers of diverse interacting agencies. Table 1 showcases the
various DRRM national institutions in the country as enunciated in RA 10121.
Table 1. Key stakeholders and institutions on DRRM in the Philippines
Disaster Management Coordination
Office of the Civil Defense (OCD)
The OCD is entrusted to ensure the protection
and public welfare during disasters or
emergencies. The OCD serves as the operating
arm of the National Council supporting discharge
of its functions.
NDRRMC; Regional Disaster Risk Reduction and
Management Council (RDRRMC); and Local
Disaster Risk Reduction and Management Office
(LDRRMO)
The highest policy-making body on matters of
disasters in the country. NDRRMC advises the
President on efforts in disaster management
undertaken by the government and the private
sector, thereby serving as the highest policymaking body on disaster management. The
NDRRMC is replicated at the regional and local
levels, and these bodies function substantially
like the NDRRMC, operating and utilizing
resources at their respective levels.
Sectoral Government Agencies (e.g. Department
of Public Works and Highways (DPWH),
Department
of
Transportation
and
Communications (DOTC), Department of Science
and Technology (DOST), Department of
Agriculture (DA),Department of Energy (DOE),
Department of Environment and Natural
Resources (DENR), etc.)
Responsible for carrying out their respective
tasks
and
responsibilities
in
disaster
management including preparedness, mitigation,
response and rehabilitation.
Source: Assessment of DRRM at the Local Level
3
Institutionalizing disaster risk reduction and management
RA 10121 recognized the need to institutionalize DRRM both at the national and local levels. It
calls for the need to develop a National Disaster Reduction and Management Framework
(NDRRMF) that provides for a comprehensive, all hazards, multi-sectoral, inter-agency and
community-based approach to DRRM. It is envisage that NDRRFM serve as principal guide to
DRRM efforts to the country and provide a framework to achieve a safer, adaptive and disaster
resilient Filipino communities (NDRRMP, 2011-2018). In order to ensure relevance, NDRRFM
shall be reviewed on a five-year interval, or as may be deemed necessary (Section 6, RA No.
10121).
In June 2011, the national government integrated NDRRFM into the Philippine Development
Plan (PDP) as well as the sectoral DRRM plans of national line and government agencies. DRRM
has four priority areas that covers: a) prevention and mitigation, b) preparedness, c) response
and d) rehabilitation and recovery. Under the PDP 2011-2016, DRRM was identified as one of
the main cross-cutting concerns. Various strategies to address and reduce people’s
vulnerabilities and risks to disasters were integrated in different sectors and sub-sectors. PDP’s
approaches to incorporate DRRM included among others, mainstreaming of DRRM in policies,
plans and programs; assessment of high-risk areas; integrating DRRM in all education levels and
in specialized technical training and research programs; heighten public awareness through
formulation and implementation of communication plan; increase local government unit (LGU)
and community participation; and intensify development and utilization of alternative and
environmentally friendly energy sources and technologies.
On the other hand, at the local level, to streamline activities of DRRM, the law supported
the modified use and appropriation of the Local Calamity Fund that established the Local
Disaster Risk Reduction and Management Fund (LDRRMF).
Section 21 of RA 10121 provides that the LDRRMF amounting to not less than five percent
(5%) of the estimated revenue from regular sources shall be set aside to support disaster risk
management activities such as, but not limited to the pre-disaster preparedness programs
including training, purchase of disaster response and rescue equipment, supplies and
medicines, for post-disaster activities, and payment of premiums on calamity insurance.
Further, the LDRRMF shall cover the thirty percent (30%) lump-sum allocation for Quick
Response Fund (QRF) and the seventy percent (70%) allocation for disaster prevention and
mitigation, preparedness, response, rehabilitation and recovery.
Conclusion
Disasters contribute to a vicious cycle of poverty, preventing individuals, families and
communities from exercising their rights and realizing their development potential. Given that
typhoons, floods, landslides, drought, volcanic eruptions, earthquakes, tsunamis and the like
will continue to hit the country, the government and the general public have to establish and
strengthen mechanisms to increase their abilities to prevent, adapt, mitigate and prepare for
potential impacts of disasters and risks. Climate change will bring about more, recurrent and
4
destructive calamities, hence, RA 10121 is a timely and relevant policy that would prepare the
country for effects and impacts of climate change. It has taken disaster risk reduction and
management at the forefront of national and local development plans and policies.
References
Assessment of DRRM at the Local Level. A Report prepared by the Commission on Audit (COA).
2014. Retrieved January 21, 2015, from http://www.coa.gov.ph/index.php/reports/disasterrisk-reduction-and-management-reports?download=20593:disaster-management-practicesin-the-philippines-an-assessment
DRR Knowledge Centre.Philippine Laws Related to Disaster Risk Reduction. Electronic reference.
Retrieved January 21, 2015, from http://drrknowledge.net/phil-laws-drr/
National Disaster Risk Reduction and Management Council (2014).National Disaster Risk
Reduction and Management Plan (NDRRMP) 2011-2028. Retrieved January 21, 2015, from
http://www.ndrrmc.gov.ph/attachments/article/41/NDRRM_Plan_2011-2028.pdf
Republic Act No. 10121 “Philippine Disaster Risk Reduction and Management Act of 2010”.
Retrieved
January
21,
2015,
from
http://www.ndrrmc.gov.ph/attachments/article/45/Republic_Act_10121.pdf
UNICEF Philippines. Disaster Risk Reduction. Electronic reference. Retrieved January 21, 2015,
from http://www.unicef.org/philippines/risk_8956.html#.VFX2sfnF-s0
Date submitted: March 31, 2015
Received, edited and uploaded: April 1, 2015
5